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Equity in Community Viability and Environmental Change

The next workshop session, built on the preceding panel’s conversations, was a conversation-guided roundtable discussion on equity, community viability, and environmental change. The panel for this roundtable included several of the presenters from the previous session: Gary LaFleur, Elder Rosina Phillipe, and Windell Curole. Young Chief Devon Parfait also joined the panel.

OPENING COMMENTS: REFLECTIONS ON THE ROUNDTABLE SESSION

Alessandra Jerolleman, the panel moderator, started the discussion by asking panelists to reflect upon the previous session’s conversations. She went first, remarking on earlier comments about the importance of having a seat at the table and the suggested alternatives to managed retreat that were discussed. She highlighted the following ideas:

• Land loss has been exacerbated as a result of old oil and gas canals that were supposed to be filled once they were no longer in use not being backfilled;
• Adaptation in place needs to be supported, whether through funding, policies, or other mechanisms;
• Accountability for environmental damages from individuals, corporations, and others who might be responsible may need to be sought;
• Funding may be necessary to support community representation in policy discussions;

• Current policies can be examined and updated; and
• Community-led efforts allowing community members to speak for themselves and determine how to move forward could be encouraged.

Jerolleman closed her remarks by emphasizing the importance of listening to those who have been living in these areas for centuries.

Young Chief Devon Parfait, Grand Caillou/Dulac Band of Biloxi-Chitimacha-Choctaw

In his opening comments, Parfait emphasized that in his experience, one of the most significant issues for coastal planning is that communities are often considered as an afterthought. He emphasized a fundamental change is needed to make sure communities are included. Additionally, when talking about coastal resilience, he went on to say it is important to talk about, and prioritize protection for, coastal communities experiencing negative impacts from flooding, erosion, and subsidence. He shared his story about growing up and living off the land near a bayou until Hurricane Rita’s storm surge caused his family to lose almost everything. After growing up in different parts of southern Louisiana, he decided to leave to get an education that would allow him to come back and work on the problems in Louisiana—especially those experienced by coastal communities.

Gary LaFleur, President, Barataria-Terrebonne National Estuary Foundation and Professor, Biological Sciences, Nicholls State University

LaFleur has been present at coastal meetings with local, state, and federal agencies where some suggestions and recommendations from community members were incorporated into the decision-making process. However, more or less, the agency is still in charge. He suggested that it would be best to consider community members as more than just a minority opinion when making decisions. LaFleur noted that some places in Louisiana are beginning to talk about receiving communities and are considering the possible benefits of receiving people that might be relocating from the coasts. He suggested that potential receiving communities need to start having conversations about this prospect so people can get used to the idea. If people have enough time to think about it, he said, “they’ll make the right decision, because you do not want to be a place that says no, we’re not gonna welcome other Louisiana natives.”

Elder Rosina Philippe, Atakapa-Ishak/Chawasha Tribe, and President, First Peoples’ Conservation Council

Elder Philippe emphasized the need to show greater respect for Indigenous populations that occupy traditionally held Indigenous land, given the fact that manipulation of the environment by outsiders has caused an increased risk for coastal Indigenous communities, imperiling their culture. As an Indigenous person from an Indigenous community, she said she is tired of people saying “things must be sacrificed—because the sacrifice is always us.” Elder Philippe went on to say that there is a long way to go, but if the contributions and knowledge of Indigenous communities are respected, and projects and processes occur after robust discussions and information is gathered from all stakeholders, the hope is that the end product will benefit everyone. She said that if a decision is made to relocate, it is important to remember that the decision has not come easily.

Windell Curole, General Manager, South Lafourche Levee District

Curole shared his experience working with the U.S. Army Corps of Engineers (the Corps) on a levee system. His priority was to protect as many people as possible. According to Curole, the Corps made decisions based primarily on cost-benefit ratios and regulations. For example, the levee was supposed to stop at the Golden Meadow corporate limits, which would have left many people outside the levee system. However, the investment of a Tabby Cats Food plant south of Golden Meadow put the cost-benefit ratio high enough that the Corps could extend the levee another two miles. The extension protected more people, including a number of Native Americans, but Curole said there was no consideration of that fact by the decision makers. The bottom line, from his perspective, was to include as many people as possible inside the levee system. He emphasized that they are still trying to help those who live outside the levee system—people who, because of their location, are unable to benefit from its protection.

COMMUNITY VIABILITY

Jerolleman began the roundtable discussion by asking what makes a community viable—for the community at its current site and for a resettlement—and how viability can be strengthened. Curole noted that coastal Louisiana communities are unique, distinct from other places, and “would not be the same somewhere else.” In Elder Philippe’s opinion, what makes a community viable is “the ability to be self-sufficient to provide for the physical, mental, and emotional well-being of yourself, your family, and your community.” She said this includes preserving and protecting not only

resources, culture, and traditions for future generations, but also other life forms and the environment. Parfait echoed Elder Philippe’s point by saying that community viability depends on thinking ahead and into the future. He pointed out that, for existing communities and future generations to survive and thrive, living sustainably with the environment “is the most technologically advanced thing that you can do.”

LaFleur said he has seen firsthand that isolated and impoverished communities are often where language and music are preserved, so for him “authenticity” is part of community viability. He discussed two problems that can arise in a community in Louisiana: (1) that a whole community can disappear, like Cheniere Caminada, and (2) that a community can change when new people with more economic means move in while the people that made it authentic move out.

GENTRIFICATION ALONG COASTAL LOUISIANA

Jerolleman mentioned that as gentrification is occurring along the coast, areas left behind after resettlement and retreat can be returned to nature or used for other purposes. She probed the panelists about what can be done from a policy perspective to protect access to traditional lands, ensuring that the resettlement of a community does not open the possibility of a different population coming in and subsequently receiving protection? Parfait responded that one of the best ways to avoid coastal gentrification is to keep communities together where they are and, by so doing, protect them by allowing their culture to thrive. He said protection is “needed now, not after new populations move in.” LaFleur suggested there is a need to teach people to value the environment, their communities, and their cultures. One way he does that with his students is by discussing the value of the area. One example of this is how he discusses with them the fact that the only Cheniere forest existing on an inhabited barrier island in Louisiana is on Grand Isle. Elder Philippe mentioned that coastal communities that are not protected are still subject to the same tax base and cost of living. She believes residents are more concerned with industrialization in the coastal region than gentrification. Another issue she raised concerns an increase in the number of delays people have experienced in receiving resources earmarked for recovery and rebuilding after storm events. To Curole, other people coming in is not a big threat. If a community is unable to get funding or have a tax base to maintain what already exists, it is at risk of disappearing. He concluded that “the most discouraging thing of all is thinking that you might outlast your community.”

INFORMATION AND DATA GAPS FOR EQUITABLE AND EFFECTIVE RELOCATION PROJECTS

Jerolleman inquired about the data and information needed for communities, on a collective basis, to pursue conversations and, in so doing, decide how to protect in place or look for alternatives. Curole replied that the fundamental question he asks is: “are we doing the best thing?” If we are, he went on to say, then we should continue. Otherwise, he said, there is a need to reexamine what has been done and consider other possibilities. Elder Philippe agreed and further noted that decisions about ways to protect communities should include stakeholders throughout the entire decision-making process. She suggested that technological advances can be used in more robust and aggressive ways. Elder Philippe concluded by saying that having meaningful conversations and collaborations is vital; otherwise, it is a “disservice not only to who you are and the entity that you represent but to the people who you’re supposed to be advocating for.”

LaFleur suggested that when considering alternatives to migration, community members should be able to determine independently, for themselves, if they want to stay where they are. He suggested changing the cost-benefit analysis criteria so that culture and communities would be weighed as heavily as, for example, the economic value of a strategic oil reserve. Parfait highlighted a significant disparity in funding for scientific projects in coastal Louisiana—and then went on to emphasize the fact that communities with fewer resources and less access to education are often not funded. He stressed the importance of respecting and valuing traditional [i.e., Indigenous] ecological knowledge and embedding changes into policies, so the “systematic exclusion of communities is fixed and addressed.”

BARRIERS TO RESETTLEMENT AND OTHER FORMS OF ADAPTATION

Natalie Snider, a committee member, acknowledged that there are people who will self-determine to stay. She asked what could be done to help people who do not want to remain in high-risk areas but may not be able to move on their own. Parfait explained that since there are many people in coastal areas without the means to move, outside financial support could enable them to relocate. Financial means can also be a factor when considering whether to evacuate during a hurricane, Parfait went on to say. Elder Philippe pointed out that moving requires resources—but staying also requires resources. She added that getting people out of harm’s way is essential. Next, Elder Philippe proceeded to pose the following questions about resettlement that have not been fully considered:

• What would a safe place look like, and where would it be located?
• What would life look like in the future?
• Where would people live, and what would their environment be like?
• Where would they work, and how would they sustain themselves—not just the people moving, but future generations?
• How would people who want to leave support themselves before, during, and after a move?
• How would cultural practices be maintained for future generations?

Elder Philippe emphasized there are many unknowns, and moving elsewhere may just trade one set of problems for another set. She stated it is less costly to support someone where they are than to move them elsewhere.

POTENTIAL INEQUITIES OF RELOCATION PROGRAMS

Craig Colten, a committee member, discussed Louisiana’s Master Plan component that addresses the type of relocation called voluntary acquisition.²⁸ There are about 2,400 households that might be eligible if they were to choose to make their property available for state acquisition. Colten pointed out that in many cases, the people who are more than likely to take advantage of this kind of program can in fact afford to move on their own. He went on to ask how to address potential inequities in the support provided for relocation programs—including the emotional costs that are not currently accounted for. LaFleur acknowledged that some of the people in the greatest need of relocation might be excluded, which is a problem he is unsure how to fix. Parfait suggested examining existing disparities and inequities in communities to consider how to offer support and resources to people who could benefit from an acquisition program. Regarding what types of programs work best, Curole suggested that looking at previous efforts to gain information about who moved and who could not move could help determine what type of programs work best. Elder Philippe remarked that she does not want relocation and retreat to be the only possible solutions considered for coastal communities. She advised including upfront in all discussions the concept that there are other ways to support communities in place if resources are dedicated to environmental recovery and protection.

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²⁸ More details on voluntary acquisitions are included in the current draft of the 2023 Louisiana Coastal Master Plan, available at: https://coastal.la.gov/our-plan/2023-coastal-master-plan/

COMMUNITY INVOLVEMENT AND PARTICIPATION

An audience member remarked that project timelines and planning processes often change and may end up taking decades, especially when the Corps is involved. Given this context, he asked panelists how to go about making sure there is authentic community involvement and participation. Elder Philippe promoted exploring and implementing smaller projects to address land loss—as well as the putting in place of coastal protections instead of waiting for big multi-billion-dollar projects that could take decades to implement. From conversations she has had about the Mid-Barataria sediment diversion project, her understanding is it could take approximately 40 years to see tangible benefits from sediment accumulation.²⁹ She went on to suggest that while waiting to see positive impacts from that project, multiple other projects could be implemented in the area to provide additional benefits. She mentioned marsh creation, ridge restoration, closing canals, pipeline sediment delivery, and diversions. Elder Philippe stressed that there is no time to wait—restoration and protection approaches must be aggressive since the communities on the frontlines are losing land every day. Parfait echoed Elder Philippe’s point that these communities deserve protection in order to be viable in the future. He suggested one way to do this would be to allow and include more community members in open conversations with decision makers.

MANAGED RETREAT TERMINOLOGY

Lynn Goldman, a committee member, reflected that the term “managed retreat” may not accurately encompass the entire process, and asked the panelists for other applicable terms. Curole responded that when an individual or community takes the lead by saying they want to move, someone should respond and assist them. In this instance, it becomes “assisted retreat” with conversations and dialogues taking place between and among multiple entities instead of a single entity managing the process. Parfait liked Curole’s definition of assisted retreat—but since retreat is not the only option, he proposed “assisted resilience.” He suggested that resilience—embodied not just by individuals but also entire communities, cultures, and livelihoods—is essential.

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²⁹ The Mid-Barataria sediment diversion project is intended to “build and maintain 17,300 acres of wetlands within 30 years of the project’s initial operations, deliver 310 million cubic yards of sediment into Barataria Basin within 50 years of operation, and increase elevation of land near the outfall area by 3.6 feet within 50 years.” More information on the project is available at: https://mississippiriverdelta.org/restoration-solutions/sediment-diversions/mid-barataria-sediment-diversion-this-is-our-best-shot/

BARRIERS TO BENEFICIAL COASTAL ENVIRONMENTAL ACTIVITIES

Lori Hunter, a member of the Board on Environmental Change and Society (BECS), asked about considering actions to benefit the coastal region that were previously mentioned, such as backfilling canals dug for extractive purposes or implementing living shorelines, and what the barriers to these actions were. Elder Philippe said low-tech and low-budget projects are not typically of interest to elected officials, so organizations and communities have undertaken projects on their own. One example is Lafitte, which closed some canals where the habitat is now flourishing. The next step, she said, is getting the attention and involvement of decision makers. A barrier Curole highlighted is the expensive and time-consuming permit process, given the fact that environmental projects are treated the same way as development projects.

LaFleur pointed out that, given how results can be hard to measure, it can be challenging for some decision makers to see the value of an ecosystem project. “As academics, we imagine that there is a lot of funding to restore places, but those funding sources are not as obvious as they could be,” LaFleur went on to say—which he thinks has slowed down environmental projects. Parfait echoed that it is all about what is valued, adding that projects that are funded often place more emphasis on economic interests than on the people involved. He noted that terms like the “working coast” may suggest that Louisiana’s economy is the element worth saving. He said that when projects are undertaken in response to what is perceived to be a convincing economics-centered argument, communities are systematically left out of that conversation and left out of those projects.

BUILDING COMMUNITY CAPACITY AND COMMUNITY RECOGNITION

Gavin Smith, a committee member, asked what can be done to empower communities to obtain and play a role in developing resources that better address local needs and conditions. LaFleur replied that it is helpful to have familiarity with the paperwork and processes required to obtain resources. He mentioned that the Lowlander Center³⁰ has helped increase familiarity with paperwork and processes in southern Louisiana, so there is a movement towards that, but it is in the early stages. Elder Philippe also mentioned the benefits of widely disseminating information on available resources in different formats and languages.

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³⁰ More information about the Lowlander Center is available at: https://www.lowlandercenter.org/

An audience member asked if there were examples of times when government agencies, scientists, or other technical advisors injured or sidetracked a community’s plan for adaptation. Parfait noted that one of the issues tribes deal with is the issue of formal recognition. There are two types of “recognition,” state and federal, and each offers its own level of funding and support. In Louisiana, there is no funding or support for state-recognized tribes—even for state-level issues—which Parfait said “is a barrier that consistently pervades working with state agencies, state government and also broader.” Elder Philippe and Chief Naquin emphasized that neither cultural and racial identity, nor the recognition process should be involved in the consideration for accessing resources. LaFleur suggested there may be a problem with the recognition criteria since none of the tribes represented at the workshop are federally recognized. In other words, he said, if Native Americans that have understood their identity as Native Americans for many centuries cannot be recognized as Native Americans by the federal government, then the government’s criteria for recognition must be flawed, rather than any purported “problem” with the tribal unit that does not reach a designated level of validity. If that could be resolved, LaFleur said, “some hard problems may get solved.”

Another audience member pointed out that many people “don’t or can’t talk about” specific topics due to their official or institutional positions. This audience member stated that many communities already have the capacity to work collaboratively—but what they lack is trust, respect, and recognition. He pointed out that there are narrowly defined criteria for a successful relocation process. He went on to say that community members are often included in meetings but not listened to. Elder Philippe expressed that work must be done to build community capacity, the lack of capacity being due primarily to the negative impacts of previous eminent domain claims for coastal communities. Parfait concluded the discussion by saying that even though coastal Louisiana has dealt with many injustices in the past, “there is an opportunity for change.”

KEY TAKEAWAYS

Panelists shared their key takeaways from the roundtable conversation:

• Jerolleman wondered how community capacity could be accepted—as opposed to community efforts being shut down or excluded—and how to ensure agencies and partners do not overlook the work that communities are already undertaking.
• LaFleur noted that the Isle de Jean Charles relocation was an imperfect process, but that it can be used as a benchmark for future projects to do better with gaining increased community input.

• Elder Philippe said in order to make a difference for today and tomorrow, it is important to understand that gaining respect goes two ways, involving both learning how to communicate and listening to gain an understanding of what is being said.
• Curole mentioned it is important to acknowledge that projects often take a long time and conditions can change, but cautioned that the project, or changes to it, should not override the original purpose. “Be sure you’re hitting the target and not just doing something to do something.”
• Parfait encouraged people to “think about ways that you can be an agent of change,” since future generations and the environment will be affected by current actions or inaction.

CLOSING REMARKS

E. Barrett Ristroph, a committee member, closed the workshop by revisiting some themes discussed by several of the panelists:

• There is a history of resettlement along the coast, so the concept is not something new.
• The importance of place is a fundamental basis for culture and identity.
• The Louisiana coast is a special place shaped by the Mississippi River and the delta and is one of the few places people can live off the land.
• Coastal Louisiana is vulnerable not just to hurricanes but also to the effects of industry.
• Subsidence and other impacts are as much of an issue in coastal Louisiana as climate change.
• People understand the environmental threats and the resulting possibility of a need to leave—in some cases—and their survival has traditionally depended on this valuable knowledge.
• For many, displacement poses parallel threats: the loss of their culture and their identity.
• There is a history of dispossession by outsiders coming in and making decisions for local people—and, at the same time, profiting from the land without returning anything. This experience has led to emotional turmoil and may have consequences for future generations.

• Some tribal communities were effectively “sacrifice zones”³¹ for climate change, just as they were for oil and gas development, while more affluent communities have not been asked to make such sacrifices and are not expected to move. There was a strong justice component present in the day’s conversations.
• Not everyone will consider relocation, and there are various reasons for this.
• Low-tech projects, in addition to longer-term projects, could help address environmental changes.
• Policy changes and federal tribal recognition could enable more access to resources.
• Indigenous people’s self-determination and community self-determination, and protection in place, are often not considered.

The recurring theme discussed by all panelists, Ristroph noted, was the need for improved communication, accountability, and community involvement from start to finish.

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³¹ “Sacrifice zones” is a term used to describe the places where underserved communities live in close proximity to polluting industries that expose them to environmental threats. An example of a sacrifice zone for climate change is an area subject to the immediate effects of climate change (i.e., increased flooding, drought) which is not protected to the same extent as surrounding communities. More information about “sacrifice zones,” is available at: https://www.climaterealityproject.org/sacrifice-zones

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